유럽연합 난민정책의 전환점? 우크라이나 사태와 임시보호지침을 중심으로
Paradigm Shift of Common European Asylum System? Focused on the Ukraine Crisis and the Temporary Protection Directive
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유럽연합은 난민의 대량유입 위기에 대처하기 위해 2001년 임시보호지침을 마련하였지만 이십 년이 지난동안 한 번도 적용되지 않았다. 지난 수 년 동안 EU 공동난민정책에 대해 회원국이 보여준 불협화음에 비춰본다면 우크라이나 난민에 2001년 지침을 적용하기로 합의한 것은 매우 이례적이다. 요한슨 EU 내무담당 집행위원은 이와 같은 유럽연합 회원국의 입장을 EU 난민정책의 ‘패러다임 전환'으로 보고 향후 유럽공동난민체제에 긍정적인 변화를 기대할 수 있을 것이라고 내다봤다. 이에 본 연구는 2001년 지침이 그동안 적용되지 못했던 이유를 다섯 가지로 살펴보고 그중에서도 특히 연대의식에 대한 회원국 간 이견이 좁혀지지 않은 것이 중요한 요인임을 고찰했다. 이전 대량유입 위기와 달리 2022년 발생한 우크라이나 난민에게는 2001년 지침 적용으로 임시보호 난민 지위가 적용됐는데 이는 특히 EU 접경국가인 우크라이나의 상황이 유럽의 안보와 직결된다는 점과 밀접한 관련이 있다. EU 회원국은 우크라이나 난민에게 2001년 지침중 제 11조를 적용하지 않기로 합의했는데 이는 그동안 더블린 체제에서 중요하게 생각한 2차 이동 방지에 대한 생각이 이전보다 유연하게 전환될 수 있음을 시사한다. 또한 폴란드가 2001년 지침중 유럽연합의 연대체제 조항(제24-26조) 채택을 거부한 것은 난민의 의무적 재배치(mandatory relocation) 반대에 대한 비제그라드 국가의 입장이 바뀌지 않았음을 보여준다.
Abstract
In order to cope with the mass influx of refugees, the European Union adopted the 2001 Temporary Protection Directive which has not been applied until the Ukraine crisis. In fact, in light of the dissonance that member states have shown over the years on the Common European Asylum System(CEAS), it is very unusual for EU member states to agree to apply the 2001 Directive to Ukrainian refugees. EU Home Affairs Commissioner Johansson defined the EU member state's position as a new 'paradigm shift' in the CEAS, and prospected that positive changes could be expected in the EU common asylum system. Therefore, this paper examines five reasons why the 2001 Directive has not been applied so far, and among them, considers that the failure to narrow differences among member states on the solidarity spirit is an important factor. Unlike the previous mass inflow crisis of EU, an important reason for the application of the 2001 Directive to the Ukraine war is closely related to the fact that Ukraine, a country bordering the EU, is directly related to European security. This paper also observes that since EU member states agreed not to apply Article 11 of the 2001 Directive to Ukrainian refugees, the prevention of secondary movement which has been important in the Dublin system, can be changed more flexibly than before. Also, Poland's refusal to adopt the EU's solidarity clause (Articles 24-26) of the 2001 Directive shows that the position of the Visegrad group against the mandatory relocation of refugees has not changed.
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